File $JAVA_HOME/jre/lib/ext/l10n_<locale>.jar is available on Solaris when the corresponding locale is installed. However, it is not available anywhere with the JDK downloads. These are packaged under SUNW?j2rt packages (the '?' identifies the locale) on Solaris and are otherwise not distributed anywhere else.

We need to make these files available to ISVs (Portal Software, Inc.) and their customers as this will hold them off shipping products localized into the 10 languages we have.